Learning the lessons: Operation Pallial 1 Learning the lessons: Operation Pallial Children’s Commissioner for Wales January 2015 Learning the lessons: Operation Pallial 2 Acknowledgments With thanks to the survivors who gave their time and spoke so honestly. Their experience is an intensely personal one and this report hopefully goes some way towards repaying the trust they have shown. Learning the lessons and acting on their experience will hopefully help future investigations involving adult survivors of childhood sexual and physical abuse. This report is available in alternative formats by phoning us on 01792 765600 or emailing us at [email protected] Learning the lessons: Operation Pallial 3 Contents 1. Foreword by Keith Towler, Children’s Commissioner for Wales 2. Introduction 3. Origins of Operation Pallial 4. Key Themes a. Voice and Support b. Communications c. Resourcing and Transition d. Implications on children in present care settings 5. Conclusion Learning the lessons: Operation Pallial 4 Foreword by Keith Towler, Children’s Commissioner for Wales December 2014 Earlier this year I was asked by Keith Bristow, Director General of the National Crime Agency (NCA), to coordinate and publish a report looking at how agencies, including the police, local authorities, the NCA and Victim Support, have worked together to support complainants involved with Operation Pallial. These agencies, along with myself as the Children’s Commissioner for Wales, form part of Operation Pallial’s Strategic Coordinating Group. This report will attempt for the first time to identify any emerging lessons that any future operation could learn from and examine the implications of Operation Pallial on children and young people in care settings today. A key element of this work will be to hear the voices of complainants and reflect on their views. Learning the lessons: Operation Pallial 5 Introduction In November 2012, an independent investigation was set up to examine specific allegations of past child abuse in north Wales. Keith Bristow, Director General of the National Crime Agency, was asked by the Chief Constable of North Wales Police to lead Operation Pallial. Mr Bristow became ‘Gold Commander’, and took overall responsibility for the strategic direction, proportionality and integrity of the investigation. To assist in the delivery of his strategic intentions, the Gold Commander invited individuals with professional expertise in specific areas to sit as members and contribute to the business of a Strategic Coordinating Group (SCG). This group, comprising representatives of North Wales Police, Crown Prosecution Service (CPS), local authorities, Operation Pallial, independent community representatives, Victim Support, NSPCC Cymru/Wales and the Children’s Commissioner for Wales, have met regularly over the course of the investigation. Here members examine the legacy of the SCG’s work as part of Operation Pallial, reviewing learning points from the work each partner has contributed to the investigation and identifying areas of good practice and recommendations for practice development. Learning the lessons: Operation Pallial 6 Origins of Operation Pallial and the Strategic Coordinating Group (SCG) On 2 November 2012, the BBC’s current affairs In 1995, the then Secretary of State for programme Newsnight broadcast an interview Wales… appointed a QC to examine all the with Mr Steven Messham, which included relevant documents and recommended allegations made by him that he was abused whether there should be a public enquiry. The as a child whilst in the north Wales case system recommendation was that there should not be and that the Waterhouse Enquiry had failed to a public enquiry but an examination of the work uncover the full extent of abuse in the 1970s of private care homes and the social service and 1980s. departments in Gwynedd and Clwyd Councils. Following the broadcast of his interview and This work revealed not only shortcomings in the ensuing intense public interest, North Wales the protection of vulnerable children, but the Police, the NSPCC, the Children’s Commissioner shortcomings had persisted even after the police for Wales, NHS, the Child Exploitation and Online investigation and subsequent prosecutions. In Protection Centre (CEOP) and other public and 1996… the Secretary of State for Wales, invited voluntary services began to receive multiple Sir Ronald Waterhouse to lead an enquiry into complaints of child abuse that took place the abuse of children in care in the Gwynedd previously in the north Wales care system. and Clwyd Council areas. In 2000, the enquiry’s report ‘Lost in Care’, made 72 recommendations The Home Secretary, Theresa May MP, for changes to the way in which children in care summarised these past events in a statement to were protected by councils, social services and the House of Commons on 6 November 2012: the police… Last Friday, a victim of sexual abuse at one of the homes named in the report – Mr “In 1991, North Wales Police conducted an Steve Messham – alleged that the enquiry did investigation into allegations that, throughout not look at abuse outside the care homes, and the 1970s and 1980s, children in homes that he renewed allegations against the police and were managed and supervised by Clwyd County several individuals.” Council were sexually and physically abused. The result of the police investigation was eight The Director General of the National Crime prosecutions and seven convictions of former Agency, Keith Bristow, was asked by the Chief case workers… a report produced by Clwyd Constable of North Wales Police to lead, direct Council’s own enquiry was never published and control the investigation and to enable the because so much of its content was considered Serious Organised Crime Agency to host it. by lawyers to be defamatory. Learning the lessons: Operation Pallial 7 Operation Pallial’s Terms of Reference were The number of people coming forward to as follows: report past allegations of abuse in the care system in north Wales continues to increase. Phase 1: Examine specific, recent allegations Up to 1 December 2014, a total of 287 people made in relation to historic abuse in care in have reported one or more allegations to north Wales: Operation Pallial. i. Assess any information recently received In order to assist in the delivery of Operation in relation to abuse allegations Pallial’s strategic intentions, Keith Bristow, as ii. Review the historic police investigations Gold Commander, invited individuals with into such matters professional expertise in specific areas to sit iii. In light of the above, to provide the Chief as members and contribute to the business of Constable of North Wales Police, copied a Strategic Coordinating Group. The Terms of to the Home Secretary, an initial report, by Reference for the Strategic Coordinating Groups end of April 2013, identifying and making are as follows: recommendations for consequential action and further directions to deliver the terms Aim: Assist the Gold Commander to deliver an of reference. effective investigative response through the provision of support, advice and analysis. Phase 2: If the need is identified, investigate those allegations and where necessary take Members will, where appropriate: appropriate action. • Agree to operate in a collaborative manner demonstrating sensitivity On 29 April 2013, Mark Polin, Chief Constable for the view of others; of North Wales Police, asked Keith Bristow to • Actively contribute to the business continue an independent investigation into of the Strategic Coordinating Group recent allegations of past child abuse. A total of 35 people (accurate as of 1 December 2014) • Share professional knowledge and expertise have now been arrested or interviewed under • Accept responsibility for the management caution by National Crime Agency officers*. Of of thematic strategies these a total of 12 people are due to stand trial in 2015, a total of 13 people (including John • Identify critical factors together with possible Allen who was sentenced to life imprisonment remedies, which will remove, mitigate or on 1 December 2014) have been charged manage potential risk and the remaining 22 are on bail while • Inform and assist with the thematic review / investigations continue. analysis of operational strategies. * The National Crime Agency (NCA) is a law-enforcement agency with officers, rather than a police force with police officers Learning the lessons: Operation Pallial 8 Learning the lessons: A Survivors’ Perspective A key part of learning the lessons from 1. How did you become aware of Operation Operation Pallial is to hear from survivors Pallial and what motivated you to contact who have had direct experience of engaging them? with the process. To that end Keith Towler, the 2. What were you expecting to happen when Children’s Commissioner for Wales, talked to you made contact with Operation Pallial? four people who contacted Operation Pallial and went through the whole process, from 3. What actually happened when you making contact, being interviewed, receiving made contact? support and giving evidence in court. Whilst 4. How did you feel the police handled this may not be a fully representative view from your case? survivors, listening and acting on the experience of these adult survivors of child physical and 5. Did you feel supported during the process? sexual abuse provides telling advice and their 6. If so, who supported you and how were experience of engaging with Operation Pallial you supported? provides strong messages for anyone planning 7. If you didn’t feel supported, what support or conducting similar enquiries. could have helped to make the process easier for you? The discussions centred on 13 pre-prepared questions that shaped each of the interviews. 8. Are you receiving any on-going support? The four people who agreed to talk were initially 9. Did you feel that people were listening approached by officers from Operation Pallial to you during the process? and given the questions in advance: 10. Were people keeping you informed of progress and next steps? 11.